Hari Srinivas
	Case Study Series E-048. June 2015.

Introduction

"Dentoteki Kenzobutsu Gun Hozon Chiki" or Preservation for Groups of Historic Building - Den Ken Chiki for short - is a regulation promulgated by the Japanese Government, under the Cultural Properties Protection Law, to preserve whole areas of historic neighbourhoods in Japan.

While the term 'preservation' may reflect a static view of governmental action on ancient buildings and historic areas, the DenKen Chiki is more dynamic in nature, with the conservation of historic areas encompassing its preservation, restoration, reconstruction and redevelopment, considering economic, socio-cultural, legal and administrative aspects.

The town of Imai-cho preserves the appearance of an 18th-century Japanese town. The outward appearance of the houses, with their lattice doors and earthen walls, and their inner furnishings, including spacious earthen-floored rooms and traditional kamado ovens, provides a glimpse of what life was like for the merchants of olden time.

History of Imai-cho

The name 'Imai' was first used in the 1386 scriptures of Kofukuji temple, to depict a loose geographical area. The city was in fact founded sometime between 1532 and 1555. Building in the area was begum by Toyohisa Imaihyobukyo, a Buddhist priest of the Ikkoshu sect, who built the Shonenji Temple and surrounded it with a moat for protective purposes. After civil strifes in 1568 and 1575, ties with the cities of Osaka and Sakai flourished and by the Edo era (1597 - 1868), it had become an important commercial city of the south Yamato plains. A special self--government was later set up and Imai-cho came to be ruled by Governors.

During the Edo era, the city extended 600m east-west and 310 m north-south, with an encircling moat and earthen buttress. Inside were some 1,200 houses and a population of 4,100. It was divided into six districts and accessed by stone bridges in nine locations. Narrow and twisting roads built to confuse the enemy testify to the defensive nature of the city plan, where rich merchants and property were protected from invaders.

Many of the houses in Imai-cho today, dating from the 1960s, reflect the old Japanese city built around a temple. Eight of the houses in Imai-cho have been designated as 'Important Cultural Properties' by the National Government. The uniqueness of the area lies in the fact that most of the old houses are still being inhabited by descendants of the families who originally built them, making it some of the best preserved houses of the Edo period.

Preservation Process

The process of designating an historic area as a preservation zone begins by a survey research of the are to determine the measures to be taken for preservation, areas to be preserved, financial allocation, etc.

Conflicts that commonly develop during this period is mitigated through a series of consensus-building exercises. It is usually at this period that residents' associations and groups are formed to mediate between the interests of the land/house owners and the local government. Consensus formation is followed by the designation of the historic area as a 'DenKen Chiki'. Individual old buildings are simultaneously designated as 'Important Cultural Assets'. Financial assistance, relaxation of building regulations, conformation to historical styles during remodelling/reconstruction etc. are also considered during designation.

A Preservation Council is established to deal with various issues. This is formed by representatives of Ministry of Construction, Agency of Cultural Affairs, the local government as well as residents associations. The Preservation Plan proposed for the historic area first hears opinions from the Council, including the validity of the areas selected for preservation. After necessary modifications, it is thrown open to public hearings. Written reports of conflicts with the Plan are invited from the residents' associations. Their active participation is enlisted to ensure cooperation in implementation of the preservation plan.

Mediation and Consensus-Building

Conflicts arise between residents of an historic area and the local government during the designation of DenKen Chiki. In the case of Imai-cho, some of the key conflicts concerned the contents of the preservation plan, and the implementation procedures. Conflicts regarding the contents of the Preservation Plan included building regulations, depreciation of land price, house rent controls, preservation techniques, fire security measures, out-migration of residents etc. Conflicts arising as a result of implementation procedure included method of declaring regulations, authority and legitimacy of questionnaires, behaviour of city officials in public hearings etc.

Taken together, there were two clear processes involved in concensus-building: an information dissemination process, and a dispute-settling process. During the first process, information on DenKenChiki designation, preservation pla etc. were disseminated to the residents. During the second process, a series of conferences, written reports, and public hearings were used to resolve conflicts between residents' interests and the local government.

Typical residences of Imai-cho

Lessons for Heritage Areas in the Asia Pacific Region

Imai-cho offers several valuable lessons for other heritage areas in the Asia-Pacific region, particularly in how to balance conservation with local engagement, legal frameworks, and socio-economic considerations. Based on your document, here are key insights and potential lessons:

Lesson 1: Integrated Legal and Administrative Framework Lesson: Use legal designation as a tool for holistic urban conservation. The DenKen Chiki framework allows not only for the preservation of buildings but also addresses broader urban planning issues like zoning, construction standards, and financial assistance. For Asia-Pacific heritage areas, this suggests the importance of embedding heritage conservation within national-level legal instruments that empower local authorities and stakeholders. Implication for other areas: Countries should consider enacting or strengthening national heritage laws that enable area-based designations (not just building-based) and allow for financial and regulatory support.

Lesson 2: Multi-Stakeholder Preservation Council Lesson: Establish an inclusive preservation governance body. The creation of a Preservation Council in Imai-cho involving national agencies, local governments, and residents illustrates the importance of multi-level governance and stakeholder collaboration. Implication for other areas: Similar councils or committees can be formed in other heritage cities to serve as platforms for negotiation, shared decision-making, and transparent monitoring.

Lesson 3: Long-Term Community Involvement and Ownership Lesson: Foster a sense of local stewardship through early and ongoing engagement. Imai-chofs conservation success is largely attributed to the active participation of long-standing residents. The fact that many homes are still occupied by descendants of original families deepens the authenticity of the town. Implication for other areas: Engage communities not just as passive beneficiaries but as active custodians, offering them roles in planning, monitoring, and educational outreach.

Lesson 4: Conflict Mediation and Consensus-Building Lesson: Use structured mediation processes to resolve conflicts. The two-pronged approach in Imai-cho (information dissemination and dispute resolution) allowed for conflicts to be handled transparently and systematically, covering concerns like property values, fire risks, and rent controls. Implication for other areas: Mediation should be built into the heritage conservation process, using tools like public hearings, anonymous surveys, and neutral facilitation to ensure fair outcomes.

Lesson 5: Adaptive Use and Flexibility in Regulations Lesson: Allow regulatory flexibility to enable heritage-compatible living. Imai-cho demonstrates how relaxing building codes and tax regulations, while ensuring architectural harmony, can make preservation more feasible and attractive for residents. Implication for other areas: Policies that reduce the financial and regulatory burden on heritage property owners (while maintaining conservation principles) will likely see better compliance and long-term sustainability.

Lesson 6: Phased and Institutionalized Implementation Lesson: Phase interventions to build momentum and institutional continuity. The timeline from 1971 to 1993 in Imai-cho shows a gradual, institutionalized approach to conservation, giving time for policies, community structures, and physical interventions to mature. Implication for other areas: Rather than rushing designation or restoration, heritage areas can benefit from a staged approach where each step (community formation, surveys, legal designations, physical maintenance) builds on the previous.

Lesson 7: Emphasis on Historic Urban Morphology and Function Lesson: Preserve not just buildings, but urban form and use patterns. Imai-cho preserved its defensive layout, road patterns, and merchant housing, which are essential for understanding its historical function and culture. Implication for other areas: Conservation efforts should go beyond facades and focus on urban morphology, traditional uses, and socio-cultural context.

The case of Imai-cho in Japan illustrates how a carefully structured and participatory approach to urban heritage conservation can successfully preserve historical character while accommodating contemporary community needs. Through legal frameworks like the DenKen Chiki, inclusive governance via Preservation Councils, and phased, consensus-based implementation, Imai-cho offers a model that integrates heritage protection with socio-economic sustainability. Its emphasis on engaging long-term residents, mediating conflicts transparently, and allowing for regulatory flexibility reflects a pragmatic balance between preservation ideals and everyday realities.